Introduction

There has been much made of the issue tensions and confrontations that mark contemporary American politics. The operative phrase today is that America is a "divided nation"—Democrats versus Republicans, red states versus blue states, conservatives versus liberals, evangelicals versus seculars. American politics may not be so much divided, so the argument goes, as held captive by partisan ideologues and issue proponents who have effectively captured the national consciousness while the vast silent majority remains on the sidelines. Before even the policy process begins, it is essential to recognize that the values, the beliefs, the behavior patterns, the prejudices, and the fears that exist within the character of the American public and American institutions will shape the manner in which national issues and national problems are handled. The black box of decision-making, better known as government, is where national issues become captive to the complexities of the American governing system.